First Programme for Government in 13 years agreed

The very fact that the Executive has agreed and published a Programme for Government – the first time that this has happened since 2012 – has masked the fact that it is scant on detail.

The publication of a Programme for Government (PfG) – one year after the latest return of the Executive – means that Northern Ireland has a functioning system of government in 2025. The significance of this is not to be underestimated.

The last time a PfG was published, Peter Robinson – who has been retired from politics for close to a decade – was the First Minister. However, upon closer examination, the PfG emerges as a vague document which provides precious little in terms of delivery metrics, budgets, or timescales, despite an entire year of preparation prior to publication.

Strategic priorities

Broadly, the PfG identifies five overarching priorities:

1. Sustainable living:

• reducing greenhouse gas emissions in line with UK climate targets;

• improving energy efficiency in housing and public buildings; and

• increasing investment in renewable energy infrastructure.

2. Economic prosperity:

• supporting business growth and foreign direct investment;
• developing skills and reducing economic inactivity; and
• delivering infrastructure projects, including transport upgrades.

3. Thriving society:

• reducing health service waiting times;
• improving mental health services; and
• raising educational attainment levels.

4. Equality and inclusion:

• tackling poverty and social exclusion;
• promoting fair access to employment and services; and
• addressing regional disparities.

5. Mutual respect and reconciliation:

• supporting shared education and community initiatives;
• promoting cultural understanding; and
• strengthening community relations.

However, on specific policy spheres, the details are less than clear.

Housing

The Executive has prioritised increasing the supply of affordable homes, with a focus on social housing developments. Targets include the construction of new social housing units and the refurbishment of existing stock to improve energy efficiency. The PfG also emphasises the need to reduce homelessness through preventative measures and enhanced support services.

A key aspect of the Executive’s housing policy asporations involves retrofitting existing properties to meet higher environmental standards, aligning with broader sustainability goals. This includes improving insulation and heating systems in both public and private housing stock.
The document acknowledges the importance of partnership working with housing associations and local councils to deliver these objectives.

However, the PfG does not specify detailed timelines or funding allocations for housing initiatives. The success of these measures will depend on the availability of resources and effective coordination between departments. The Executive has indicated that further details will be provided in departmental delivery plans, with progress monitored through regular reporting mechanisms. While the Department for Communities has published a number of strategies and delivery plans, the fact that these are not specified in the PfG indicated that a siloed approach is being adopted by the Executive.

Health

Key health priorities include reducing waiting times for elective care, emergency treatment, and mental health services. The PfG also commits to enhancing primary care provision to alleviate pressure on hospitals and improve access to community-based services.

Mental health receives specific attention, with pledges to expand services and early intervention programmes. The document highlights the need for workforce planning to address staffing shortages and ensure sustainable service delivery. Public health initiatives, such as reducing obesity and smoking rates, are also included as part of a broader prevention strategy.

The PfG does not provide detailed costings or implementation timelines for these health commitments. Funding will be determined through the annual budget process, with departments responsible for developing specific delivery plans. The Executive has emphasised the importance of cross-departmental collaboration to address systemic challenges in the health sector.

Education

Education features prominently in the Programme for Government 2024-2027, with a focus on improving outcomes for all learners. Key commitments include raising attainment levels in literacy and numeracy, particularly among disadvantaged pupils. The PfG also prioritises investment in early years education to support child development and school readiness.

The document highlights the need to address educational inequality, with targeted interventions for underperforming schools and regions.
Initiatives to promote shared education and cross-community engagement are included as part of the reconciliation agenda. The Executive has also pledged to enhance skills development programmes to align with labour market needs.

Energy and environment

The Executive has prioritised increasing renewable energy generation, particularly through wind and solar projects, to meet climate targets. A key focus is improving energy efficiency across sectors, including retrofitting homes and public buildings to reduce emissions and fuel poverty.

The PfG includes measures to enhance sustainable transport infrastructure, such as expanding electric vehicle charging networks and promoting active travel options. Environmental protection commitments involve preserving biodiversity, improving waste management, and reducing plastic pollution. The document also references the need to develop a ‘green economy’, creating jobs in low-carbon industries.

Analysis

The PfG is a broad and aspirational programme which does not go into specifics in any great detail, meaning that subsequent independent actions on behalf of each department will be the developments awaited by business and security at large.

While the publication of the PfG is a significant step forward for the region’s politics, the document’s advocacy for ambiguous items such as ‘more affordable housing’ and ‘better waiting times’ while barely specifying how, means that it will be a challenge to scrutinise the Executive’s delivery record.

The Executive leaders will reap the political capital for having agreed to publish a document for the first time in 13 years, while the challenges facing Northern Ireland’s public services are likely set to continue, with Westminster budgets forming the backbone of all of the Executive parties’ excuses for failed delivery.